ageing in an inclusive society - university of bristol · 2012-01-09 · research, strategy and...

Ageing in an Inclusive Society

pr ior i t ies

promoting the social inclusion of older people

a consultation document

pr inc ip les

ideas

If you require additional copies of the consultation paper, it is available:

BY PHONE

Telephone 028 9052 3437

BY POST

Office of the First and Deputy First MinisterRoom E3.19Castle BuildingsStormontBelfastBT4 3SR

ONLINE

http://www.ageinginni.gov.uk

EMAIL

[email protected]

IN OTHER FORMATS

Please contact Andrew Adams on telephone 028 9052 8660 or at theaddress above.

Section Page

1. Introduction .............................................................................................................1The role of the PSI Working Group.....................................................................1Bringing the strategy together..............................................................................2Multiple identities, discrimination and older people......................................3Format of the report ...............................................................................................4

2. Older people’s lives .............................................................................................5

3. The vision, strategic objectives and principles......................................12Vision .........................................................................................................................12Strategic objectives................................................................................................12Principles ..................................................................................................................12

4. Promoting the inclusion of older people.................................................14

Objective 1: To address comprehensively the economicand financial exclusion of older people ................................14

Objective 2: To develop and deliver health and social Services that address the distinctive and complex needs of older people ...............................................................21

Objective 3: To increase the safety of older people and to ensure that they have access to the facilities andservices that meet their needs and wishes.........................25

Objective 4: To promote equality of opportunity for older people and their full participation in civic life, and challenge ageism wherever it is found..................................32

Objective 5: To ensure that we work in a co-ordinated fashioninside and outside Government to improveservices for older people..........................................................40

5. Making a response to the consultation ...................................................45

Annex I: Equality issues .............................................................................49Annex II: Terms of Reference of PSI Working Group

on older people...........................................................................52Annex III: Members of the PSI Working Group on

Older People ................................................................................54

Ageing in an Inclusive Society a consultation document


Ministerial Foreword

When the Promoting Social Inclusion (PSI) group on older people was set up in2002, the Government was fulfilling one of the commitments given in the firstProgramme for Government. I am very pleased to present this consultationdocument, which reflects views and opinions of this wide-ranging group.

Within the broad category of older people, lie several generations with differentlife experiences and different sets of expectations. The first principle, then, ofserving an older population is to recognise the great diversity that exists and tobe conscious of the dangers of stereotyping.

‘Ageing in an Inclusive Society’ is a strategic approach by Government topromote and support the inclusion of older people in Northern Ireland. Inpreparation of this consultation the PSI group have considered factors whichcause older people to be at risk of social exclusion and they have workedtogether to produce a series of ideas on how we might tackle the socialexclusion of older people.

The consultation period will extend until 19th November 2004, to allow officialsto consult as widely as possible. The proposals here are intended to develop anagreed strategy for tackling the social exclusion of older people and ultimatelyto turn ideas into actions. I welcome your views.

Rt Hon John Spellar MPEquality MinisterJune 2004

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Ageing in an Inclusive Society a consultation documentAgeing in an Inclusive Society a consultation document

Introduction

This Consultation Document aims to stimulate discussion on promotingthe social inclusion and participation of older people in civic life, measuresto tackle and prevent potential discrimination, and remove obstacles olderpeople may face in achieving this. It highlights amongst other things howageing cuts across the generations through, for example, the need forfinancial planning for retirement; challenges attitudes that younger peoplemay have about older people; and the need for society to value and usethe expertise of the older community.

While the United Nations’ definition of an older person is aged 50 yearsand over, it would be unhelpful for the purposes of this document to takeany cut off point as an age above which measures to promote inclusionmight apply and below which they wouldn’t. It is also important torecognise that there is a spectrum of needs which changes from, forexample, an employment focus for people in their fifties and sixties to agreater possible health and leisure focus for those in their seventies andeighties. In the next 40 years the number of people aged 50 and overmay increase by over 55%, the number aged 60 and over may increaseby nearly 80% and the number aged 70 and over may increase by almost110%. People are living longer and healthier lives and consequently aredeveloping more diverse needs and expectations. This draft strategy aimsto reflect the diverse needs of older people, as well as the need todevelop positive attitudes to ageing among the wider community.

The role of the PSI Working Group

The Programme for Government has given a commitment to open newchannels of communication with organisations which represent olderpeople to identify developing requirements of older people; and that theprovision of services should be provided in the most appropriate andaccessible way to meet those requirements. It states that this should betaken forward within the context of the Promoting Social Inclusion (PSI)element of the New Targeting Social Need policy. This followed aconsultation exercise on future PSI priorities to be tackled, which identifiedolder people as one of several groups most vulnerable to social exclusion.A PSI Working Group on older people, comprising Government and its

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relevant social partners, was established to inform the development of astrategy to identify and tackle factors, which can contribute to socialexclusion of older people; and to undertake measures to improve andenhance their life and circumstances.1

The Working Group included a wide range of perspectives and it was notpossible to address all the priorities raised by members, particularly wherethey related to policy formulated at a UK level.

The Report has been prepared by the Office of the First Minister andDeputy First Minister (OFMDFM) drawing on the expertise of thePromoting Social Inclusion Working Group on Older People. It attempts toset out a practicable agenda that aims to have a positive impact on thelives of older people over a five-year period.

Bringing the strategy together

This consultation document has been informed by a wide range ofresearch, strategy and campaigning documents prepared by the agesector, Government and industry, as follows:

• Help the Aged 2003 research into the lives of older people in NorthernIreland2;

• Age Concern mapped out an Agenda for the Age in 2000, whichhighlights the economic, health and environmental challenges of anageing society3.

• a statistical report published in 2003 describing the socio-economicand demographic conditions of older people4; and

• a major report published in 2003 on poverty in Northern Ireland, whichlooks in particular at the issue confronting older person households5.

• A review in 2001 of the human rights of older people in NI, whichidentified potential discrimination in laws, policies and practices6.

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These reports can be accessed on website:http://www.ageinginni.gov.uk

The content of this Report is also influenced by the wider UK andEuropean Action Plans relating to older people, [also accessible on theabove website,] namely:

• The United Kingdom National Action Plan on Social Inclusion 2003-05,which describes how Government will address the needs of the oldercommunity and in particular the way in which the new Pensions Creditwill lift the incomes of the poorest people; and

• The application in Northern Ireland of the United Nation’s InternationalPlan of Action on Ageing, which describes the need for integratedprogrammes on health and nutrition, consumer protection, housing,family support, social security income, employment and education; andthe principles set out by the UN, to include independence, participation,care, self-fulfilment and dignity.

Social exclusion, multiple identities, discrimination and older people

The PSI Working Group on Older People is particularly concerned aboutthe way in which older people experience more than one form ofexclusion from the services and facilities that many of us take for granted.This report highlights the need to understand these links better and tointegrate action in order to tackle them, especially, but not exclusively,through/by equality legislation. The equality agenda gives us anopportunity to look at the varied aspects of older people’s lives and athow many experience exclusion because of the connections between themultiple aspects of disadvantage, outlined later in this report.

This Report suggests that a holistic approach is needed to address themultiple needs of older people and the processes that cause them toexperience exclusion.

1 The terms of reference and membership of the Group are described in Annex II and Annex IIIrespectively.

2 Evason, E. (2003) Older People in Northern Ireland, Help the Aged and OFMDFM.3 Age Concern (2000) Agenda for the Age: the Road Ahead for Older People in Northern Ireland,

Belfast, Age Concern.4 NISRA (2003) A Statistical Profile of Older People in Northern Ireland, Belfast, NISRA.5 Economic Research and Evaluation Consultants (2003) New TSN Household Profile, Belfast, OFMDFM.6 NIHRC (2001) Human Rights and Older People in Northern Ireland, Belfast, p.1

Older people’s lives

As highlighted in Section 1, this Report draws on a range of research andpolicy documents in developing the draft Strategy, and these can beaccessed from the website http://www.ageinginni.gov.uk. Collectivelythis research highlights that older people face multiple exclusions, andunderscores the need for an integrated plan of action to promote theirinclusion in society. In particular, it suggests a need to prioritise a series ofbroad-based integrated economic, social and financial actions to be takenforward.

Ageing is a dynamic process and one that is relevant to all of us. Olderpeople are captains of industry, innovators and leading professionals intheir field. Yet older people are particularly vulnerable to social exclusion ina number of specific key areas. They can experience poverty anddiminishing savings; feel abandoned and isolated; live in fear of crime;experience illness and disability. Many have lived through 30 years ofviolence, and the hurt, trauma and pain still live on, often silently, in theirmemories.

Why do older people experience exclusion?

The reasons why some older people are excluded and how theyexperience exclusion are complex and multi-faceted. The ability to buildup sufficient financial resources or assets, such as homes during workingage and family support networks in later life, help to explain why manyolder people enjoy a decent standard of living. However, for those withoutthese resources, reliance on social security benefits can become the mainsource of income. Other forms of exclusion, such as isolation from friends,relatives, services and facilities exist independently as well as because of alack of financial resources. Location is also relevant, as older people livingin remote areas or on disadvantaged housing estates have difficultyaccessing the sorts of opportunities that most people in society can often

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The final Strategy Ageing in an Inclusive Society will aim to ensure that thediscrimination older people may face in the provision of goods, facilitiesand services are addressed, and aims to help to support the legislativeframework designed to protect older people’s employment rights.

Format of the report

This report draws the available evidence together to assist in theformulation of strategic objectives, and sets out ideas for discussion. Itseeks views on the policy approach and ideas, and invites suggestions onother initiatives or projects that could be included in the final Strategy.

The Report is divided into four sections:

• Section 2 provides evidence of the exclusion described by ProfessorAlan Walker at Sheffield University, and identifies a number of researchreports that have helped to assemble a picture of older people’s lives inNorthern Ireland.

• Section 3 describes the vision, objectives and principles for theStrategy, and asks for your views on these.

• Section 4 contains ideas for discussion on an integrated approach totackling exclusion of older people.

• Section 5 describes the arrangements for the consultation, howcomments can be made, and how the final Strategy will beimplemented and monitored.

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Figure 1 Population change in Northern Ireland

Source; Government Actuary’s Department 2001 Based Population Projections.

Older people have lower incomes, are more benefit dependent and spendmore on necessities than the rest of the population. Figure 2 below shows thelower gross normal weekly income that older people receive. Research alsoindicates that pensioner households spend 42% of their weekly householdexpenditure on necessities (housing, food, fuel, clothing and footwear)compared with 29% for the population as a whole. Results from the NorthernIreland Life and Times Survey found that nearly half of the pensionerssurveyed (46%) stated that they were just about managing their financialposition, whilst 9% said they were finding it difficult to make ends meet.

Figure 2 Gross normal weekly income by household type

Source; NISRA, Expenditure and Food Survey 2001/2002

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take for granted. Professor Alan Walker, University of Sheffield, identifiedin a 2003 report five dimensions to older people’s exclusion7:

• Insufficient income to be able to participate in society, especially forthe very elderly;

• Where a person lives has a bearing on exclusion, for example,research shows that older women living in more remote rural areasexperience some of the highest rates of exclusion, as do older peopleliving in disadvantaged urban housing estates;

• Discrimination affects people’s access to services and their ability toearn income independently over a longer period of their life. TheEuropean Union Employment Framework Directive will help to protectolder people in the workplace and enhance the income andsatisfaction that employment can often bring;

• the incidence of ill-health and disability is progressive with age, andcurtails independence that can be crucial to feeling a valued andvaluable member of a family, community or society;

• lack of access to transport, which is vital to get to and from servicesand facilities that everyone needs for a decent standard of life.

Population change in Northern Ireland

Population trends indicate that there will be a substantial age shifttowards older people over forthcoming years. This will inevitably have animpact on the labour market, and provision of goods, facilities andservices and resources needed to ensure older people enjoy a decentstandard of later life. For example, population projections contained inFigure 1 shows that between 2001 and 2041 the number of people aged50 and over in Northern Ireland will increase by 56% from 485,000 to759,000 people. Figure 1 also demonstrates that the older age groups ofover 70 year olds will more than double during the same period from158,000 to 327,000 people.

7 Walker, A. (2003) Social Exclusion and Growing Older, Ageing in an Inclusive Society Conference,Europa Hotel, 28th March 2003.

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There is clear evidence that older people have a high degree of interest inlifelong learning, training and getting access to Information andCommunication Technology (ICT) yet Figure 3 below shows ownership ofa computer declines with age. Whilst more services are available online orrequire some competency with information technology, responses to theNI Life and Times Survey showed that 17% of people between 18-24years would use the internet to find out about a health problem, but only3% of 55-64 year olds, and no-one over 65 were likely to do this.

Figure 3 Ownership of a computer by age

Source; NISRA Continuous Household Survey 2001/2002

It is widely recognised that older people are more likely than the rest ofthe population to experience a long-standing illness or disability, visit a GPor experience mobility problems. Older people also tend to have apreference to live in their own homes. Figure 4 shows that peopleexperiencing a long-term illness rises progressively with age. Otherfindings of the Continuous Household Survey indicate that 19% of peopleaged over 50 years have mobility problems compared with 10% of thepopulation as a whole; and 87% of persons aged 65 and over feel happyin their own home.

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Figure 4 Proportion of people reporting a Long-Term Illness (LTI)

Source; NISRA Continuous Household Survey 2001/2002

The Household Condition Survey found that older people are more likelyto live in unfit housing and dwellings in disrepair, and experience the socialand health effects of living in fuel poverty. 2.8% of the Northern Irelandhousing stock is unfit, which amounts to about 17,120 occupied dwellings.Figure 5 below shows that 48% of the unfit dwellings are occupied byolder people, 34% of whom are living alone.

Figure 5 Households living in the unfit housing stock

Source; NIHE, House Condition Survey 2001

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aged 65 and over were members of neighbourhood groups and 54%belonged to church organisations. In addition, Help the Aged indicate thatolder people benefit from a large and diverse community and voluntarysector8. The Senior Network includes 800 groups, approximately 80% ofwhich involve older people’s organisations, 190 of which participate innetworking, campaigning and direct involvement with policy and research.

Figure 7 Activity in neighbourhood and religious basedorganisations

Source; ARK, Northern Ireland Life and Times Survey 2001.

Do you feel that we have analysed the needs and priorities ofolder people correctly? Are there issues that you think we shouldinclude in our assessment of need when establishing priorities?

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8 Help the Aged (2003) The Age Sector Infrastructure, Belfast.

Older people are more likely to feel insecure and vulnerable about theirpersonal safety both inside and outside their home, which has increasedwith time. Figure 6 below shows that the proportion of people feelingunsafe walking alone in their area after dark rises with age. It also showssignificant gender differences, with women feeling more vulnerable thanmen across the main age groups. The Northern Ireland Crime Surveyfound that this is especially pronounced among people aged 60 and over,with 9% of men and 25% of women feeling unsafe walking alone in theirown area after dark. In addition, results from the Continuous HouseholdSurvey indicate that nearly two-thirds, i.e. 65%, of people aged 65 andover cannot use public transport without assistance. Also, statistics fromthe Police Service of Northern Ireland shows that people aged 65 andover comprised 5.3% (3,553) of all road traffic collision casualtiesbetween 1997-2001, but they made up 13.7% (105) of all deaths overthe same period.

Figure 6 Percentage of people feeling unsafe walking alone in theirarea after dark

Source; NIO, Northern Ireland Crime Survey 2001

There is information to demonstrate that older people are activelyinvolved in, and have valuable experience of, knowledge and resourcesneeded for local regeneration, volunteering and community development.For example, Figure 7 shows that older people are members ofneighbourhood based and church-based organisations. In the 12 monthsprior to the survey (September 2003 – December 2003) 7% of people

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• respect the desire of older people to live independent and self-fulfillinglives;

• encourage a partnership approach involving all the stakeholders in thedesign and delivery of the Strategy.

Are the vision, strategic objectives and principles appropriate,and do they reflect your priorities for the development of aStrategy for older people?

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The vision, strategic objectives and principles

This section sets out the proposed approach to the Strategy. It outlines avision, the proposed strategic objectives aimed at realising the vision, andoutlines broad principles that will underpin the overall strategy.

Vision

To ensure that age related policies and practices create an enablingenvironment, which offers everyone the opportunity to make informedchoices about active, healthy and positive ageing.

Strategic objectives

In order to turn this vision into reality five strategic objectives areproposed:

1. Address comprehensively the economic and financial inclusion ofolder people;

2. Develop and deliver health and social services that address thedistinctive and complex needs of older people;

3. Increase the safety of older people and ensure that they have access tothe facilities and services that meet their needs and wishes;

4. Promote equality of opportunity for older people and their fullparticipation in civic life, and challenge age discrimination whereverit is found;

5. Ensure that Government works in a co-ordinated fashion inter-departmentally and with its social partners to improve services forolder people.

Principles

The principles that underpin this approach are to:

• prioritise social need and the way in which older people face morethan one form of exclusion;

• promote the esteem and dignity of older people;• aim to ensure that there is equality of treatment for older people;

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Idea 1.1: Ensure that the pension system works as effectively andefficiently as possible for older people in social need

The main areas of economic concern for older people relate to havingsufficient resources in later life, finance for long-term care, pension andtaxation issues, and the role and policies of the public and voluntarysectors. Age Concern point out in their consultation on their 2000 Report:Agenda for the Age; the Road Ahead for Older People in Northern Ireland,that without exception respondents have demanded that the link betweenpension and average earnings should be restored, and for rigorouslobbying by organisations in the age sector on the issue. The Age Concernreport also argues that an increase in the pension is necessary to giveolder people a decent standard of living.

Government values the role that voluntary groups in the age sector play inhighlighting issues for older people, and their work through nationalnetworks campaigning for change.

Proposals:

• Government and voluntary sector organisations will continue to worktogether to ensure that the existing pension system and the PensionCredit works effectively to target the most marginal older people.

• OFMDFM will work with the Department for Social Development toensure that the new Pension Credit is well understood and maximisedby those entitled to use them, eg a community developmentapproach involving the Senior Network might help to extend take-upof the benefit.

• Improved advice to people who are approaching retirement on thecriteria for accessing Income Support and other benefits.

• Initiatives to encourage people to make greater financial provision forretirement whilst in work.

• Incorporate in the school curriculum improved education aboutmanaging finances.

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Promoting the inclusion of older people

This section defines five strategic objectives identified with the aim oftackling inter-related financial, social and economic poverty experiencedby older people. It describes how these objectives can be achieved, whilstadhering to the underpinning principles of working in partnership witholder people, the community, voluntary and private business sectors;promoting equality of opportunity; and having respect for older people’swishes to maintain independent and self-fulfilling lives.

Objective 1: To address comprehensively the economic and financialinclusion of older people.

It is known that more people are living longer, and the limitations of stateand occupational pensions have recently been widely publicised. It is alsoknown that where older people live affects their quality of life.

The introduction in October 2003 of the Pensions Credit Scheme shouldhelp to tackle poverty amongst those on very low incomes.Implementation of the age provisions of the EU Employment Framework,by making it unlawful to discriminate on the basis of age in employmentand training, will also provide protection for older people, and others,against discrimination. Existing area-based programmes such as urbanand rural development initiatives too will play an important role inpromoting older people’s inclusion in isolated or disadvantaged areas. Inaddition, OFMDFM is developing an anti-poverty strategy to tacklefinancial, social and economic exclusion, which will target programmes forespecially vulnerable groups, including older people.

The following are a series of ideas for discussion designed to supportthese policies and practices, and to ensure that they have a positiveimpact on the most marginalised older people in Northern Ireland.

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Idea 1.2: Promote employment opportunities and entrepreneurshipamong older people

Current levels of entrepreneurship among the upper age groups inNorthern Ireland fall below those in Great Britain, and the skills andexperiences of older people are not being utilised as fully as they could.

Guideline 5 of the EU Employment Guidelines emphasises the need topromote active ageing by fostering working conditions conducive to jobretention. A target has been set for all EU Member States to achieve anemployment rate of 50% for older workers, who are defined as agedbetween 55-64 years. The 2001 Report of the Northern Ireland AgeingPopulation Panel9, which sought to identify the opportunities as well asthe challenges faced as a result of the ongoing age shift in society, alsoidentified the need to capitalise on the business opportunities afforded bythe age shift, eg specialist house construction; making full use of the skillsand experiences within the older population; and supporting mentoring inthe workforce.

Proposals:

• Departments to work with agencies involved in training and employmentand the business community to address issues set out in the Report ofthe NI Ageing Population Panel, in particular the implementation of aCode of Practice for an age diverse workforce; training for employersand trade unions; and the need to adjust recruitment practices andwork patterns to attract and retain older employees.

• The Department of Enterprise Trade and Investment (DETI) Age PositiveCampaign, launched in January 2004 to promote the business benefitsof an age diverse workforce, will formally report to the PSI WorkingGroup on Older People.

• The PSI Working Group on Older People will continue as the Group toimplement an integrated Strategic Action Plan (see section 5).

• Invest Northern Ireland’s Accelerating Entrepreneurship Strategy, in linewith New Targeting Social Need and Equality policies, will proactivelypromote entrepreneurship to under-represented groups, includingolder people.

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Idea 1.3: Promote the role of older people in the Social Economy inorder to develop business opportunities, employment and servicesrelevant to older people

A DETI led Inter-Departmental Steering Group has recently consulted onGovernment’s three-year Strategic Action Plan for developing the socialeconomy; and a Social Economy Network is currently in place to assist thedevelopment of the sector, which could provide a forum for older peopleto contribute and influence future policies and programmes.

Proposals:

• DETI to work with the Social Economy Network to ensure that groupsrepresenting older people are invited to join and express their views onhow they can contribute to the development of the sector.

• DETI and the Social Economy Network to promote the sector byhighlighting opportunities for older people through engagement withthe voluntary and community sector, wider social economy sector andmainstream economic interests, inside and outside Government.

Idea 1.4: Develop opportunities for lifelong learning and skills inInformation and Communication Technology (ICT)

As indicated earlier, research has shown that older people are less likely toown a computer or to access the Internet than the rest of the population.They are also more likely to have a disability or experience mobilityproblems.

Information and Communication Technology (ICT) and the Internet openup a range of communicative opportunities for people who are oftenphysically isolated or immobile. They also bring skills that can be used toaccess services, training and jobs or simply new opportunities for self-expression and learning.

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9 Foresight and Age Concern (2001) Northern Ireland Ageing Population Panel Report, Belfast.

Proposals:

• Departments and agencies to review their Freedom of Informationstrategies to take account of older people who may not have access,or have the skills to use computers.

• Universities and Further Education Colleges to develop their wideningaccess policies to address the specific needs of older people in theteaching programmes they offer at the planning stages, and considertheir relevance to the interests of older learners.

• In delivering mainstream training and employment schemes, relevantDepartments and agencies shall not make assumptions about thewillingness and capability of older people to participate, and removeany obstacles that older people specifically face in accessing trainingopportunities.

Idea 1.5: Enhance the role of Neighbourhood Renewal in tacklingthe specific needs of older people in areas of high disadvantage

It was highlighted earlier that where an older person lives can exacerbatetheir exclusion from society. The Department for Social Development’sNeighbourhood Renewal Strategy, entitled People and Place, is designedto tackle the most disadvantaged areas of our towns and cities.Neighbourhood Renewal will be implemented through separate strategiesfor Belfast, the North West and regional towns, and will provide aframework for articulating older peoples needs, and bringing them intomainstream development programmes for their particular areas.

Proposals:

• Area based strategies in both urban and rural areas should prioritiseolder people in the development of plans and the delivery of projects.

• Neighbourhood Renewal programmes should prioritise older people inits analysis of needs, the development of proposals, and methodologyfor involving older residents in the decision-making arrangements,including Neighbourhood Partnership Boards.

• Consultation processes generally should reach individual older people,not only representative organisations, in developing policies andprogrammes across Government.

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Idea 1.6: Encourage the targeting of the rural developmentprogrammes on the needs of older dwellers living in physical andsocial isolation

OFMDFM has recently commissioned Rural Community Network toundertake research into the needs of older people in rural communities.The research sought the views of voluntary and community groups thatserved older people in rural areas.

The groups with older people as their beneficiaries highlighted thefollowing key disadvantages for older people living in rural communities;

• A fear of crime;• Lack of access to public transport;• Isolation;• Decline in local services and;• Income levels/benefit take-up.

The research also undertook qualitative methods including interviews,focus groups and large group discussions with older people living in ruralcommunities. The key issues reported by those people taking part were;

• Crime and personal safety;• Transport;• Access to services and;• Health care issues.

As outlined above, there was a high degree of overlap between voluntaryand community groups serving older people in rural areas and theresponses of the older people themselves around key disadvantages.

Proposals:

• Rural Community Network research should provide a platform for theagencies and interests to come together to review the progress thathas been made on delivering programmes in rural areas, identifyingstrategic gaps in service provision, and tailoring programmes to thespecific needs of older people.

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Idea 1.7: Build on progress made in tackling fuel poverty inpartnership with key agencies and the age sector

The term fuel poverty is the situation whereby a household cannot beheated adequately because of the cost that would entail. This has beenrecognised as due to a combination of low household income, high fuelcosts or the use of expensive types of fuel, and poor energy efficiency.Fuel poverty is defined by the Department for Social Development (DSD)as ‘the situation in which a household would have to spend more than10% of its income on all fuel use to maintain an acceptable level oftemperature throughout the home.

This report acknowledges progress made on tackling fuel poverty. Inparticular, the establishment of the Northern Ireland Fuel PartnershipForum and the Warm Homes Scheme funded by DSD complementsthe work undertaken by the Housing Executive to improve energy-efficiency across all tenures. This is vital work that needs to ensure thathousing design, resources and information improves the quality of life ofolder people in their homes. In addition, the outcome of deliberations inGB on the practicalities of extending lifetime standards to privatedwellings will be given due consideration to amending equivalentlegislation in Northern Ireland. Also, the Department for SocialDevelopment will shortly issue a Fuel Poverty Strategy that will set targetsand milestones aimed at the systematic eradication of fuel poverty invulnerable groups, including households that contain a person aged 60years or more.

Proposals:

• DSD will work with the Northern Ireland Housing Executive (NIHE) andthe private house building industry to improve the supply of lifetimehomes, especially where they address the distinctive energy prioritiesof older people.

• Following the outcome of deliberations on the practicalities ofextending lifetime standards to private dwellings in GB, OFMDFM will beencouraging the introduction of similar standards in Northern Ireland.

• Link campaigns to address fuel poverty with activities that improve thetake-up of the Pensions Credit.

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• Involve the Senior Network and organisations in the age sector inhelping to target programmes at those most in need.

Objective 2: Develop and deliver health and social services that addressthe distinctive and complex needs of older people

The Department of Health, Social Services and Public Safety’s (DHSSPS)20-year Regional Strategy for Health and Social Services will focus on thespecific needs of older people in Northern Ireland. This will includeconsideration of the recommendation to develop and consult on astrategy for older people in health and social care matters. The Strategywill recognise developmental work in Health and Social Services Boardsand Trusts, within the DHSSPS, and in inter-departmental groups such asthe Promoting Social Inclusion (PSI) for Older People Working Group. TheDHSSPS recognises that it is vital that the development of integrated,responsive services, which is central to the new Regional Strategy, drivesforward comprehensive improvements in services impacting on the livesof older people over the next twenty years and beyond.

Idea 2.1: Ensure that health and social services for older people arecomprehensive and integrated

It is recognised that the biggest challenge is not how to manage increasinghealth and social services costs for the older population - though this willbe significant – but how to ensure that older people have the best qualityof life possible. It is also recognised that there is a need to bring togetherservices that older people require, such as the key services of housing andtransport, alongside health and social services.

Future decisions about planning and delivery of services will includeworking outside of the DHSSPS’s structures and barriers that currentlyexist, aimed at bringing together a full range of services that will ensurethat older people have easy access to equitable, safe and uncomplicatedservice provision. Central to this challenge is the effective involvement ofolder people in the development of high quality services.

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The Regional Strategy for health and social services will address issuesrelating to community care; abuse of vulnerable adults; dementia services;and functional mental illness. There will be a particular focus on activeageing and self care, and the promotion of dignity and independence forolder people.

Proposal:

Proposed PSI Older People Implementation Group to keep in closecontact with DHSSPS on progress of DHSSPS Regional Strategy for Healthand Social Services, and other related integrated activities.

Idea 2.2: Prioritise the concerns of older people in the developmentand delivery of health and social services in Northern Ireland

DHSSPS has sought and received a wide range of views on services forolder people from health and social care staff, representativeorganisations working with older people, community groups, and olderpeople themselves. The responses received can be concentrated into anumber of over-arching themes. These themes will form the foundationfor future strategic direction for the development of services for olderpeople in Northern Ireland. They show that older people need:

• Person Centred Care, with a single point of access to a full range ofpublic services which include health, social care, housing and benefitsadvice; and a single assessment of their care needs with standards ofcare which will monitor services and ensure high standards;

• Access to a range of integrated Health and Social Services thatpromote their physical health and well being so that they can play asactive a part as possible in the community and society in which we live;

• Active participation in planning services and continuous feedback toencourage and recognise their contribution;

• Specific training and support and advocacy services to meet the needsof older people from different minority ethnic groups;

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• Access to a range of innovative care options to meet needs;

• Leadership/Champions to drive forward changes and improvements toservice provision for older people.

Idea 2.3: Listen to older people in the development of health andsocial services planning in Northern Ireland

It is clearly necessary to listen to the views of older people if their needsare to be met, and if services are to be improved upon. An overallapproach of comprehensive forms of consultation, analysis of researchand action is necessary if lessons for the future are to be learnt.

DHSSPS will work closely with other Departments to identify and addressthose issues that prevent older people enjoying a safe, healthy and activelife. The development of the Regional Strategy for health and socialservices is nearing the end of the first phase of public consultation and adraft strategy will be available for consultation from mid 2004.

Idea 2.4: Promote the dignity of older people in hospital care

For many people, including older people, isolation and loneliness cancompound their medical conditions in busy wards.

Proposals:

• The national Help the Aged Dignity on the Ward Campaign should bebroadened within Northern Ireland, especially for very old people inhospital care.

• Government should work in partnership with Health Boards, Healthand Social Services Trusts and voluntary agencies to determine themost suitable package of support that brings additional attention,stimulation and interest to older patients.

• Develop strategies and provide resources to ensure that all staff areadequately trained, re-trained and remunerated.

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Idea 2.5: Support and develop strategies for independent livingamong older people

There is an acknowledgement that the longer a person can live on theirown, the more likely they are to experience good health and a positiveattitude to ageing.

DHSSPS is committed to help people live on their own, as set out in itsstrategy Community Care Review, First Report (2002). One of the sevenpilot projects being rolled out is the initiative Enabling People to Live intheir Own Homes, which brings together key agencies and resources toachieve this task. Also, the PSI Working Group on Carers is currentlylooking at training support for the sector, as is the Northern Ireland SocialCare Council, and it will be important to set out how this area of work willbe integrated.

Strategies to support independent living also extend to actions outsidecare provision. The Housing Executive’s Private Sector Grant Regime andassistive technologies (such as fall detectors and community alarms) havehad considerable success in helping householders to stay in their ownhomes by addressing unfitness, disrepair, disabled facility adaptations,enhancing energy efficiency through the provision of insulation and non-manual central heating systems. The Supporting People legislationimplemented by the Department for Social Development has extendedthe range and level of services that householders can avail of, with theNIHE leading on the Supporting People Programme in Northern Ireland.

Proposals:

• Projects such as mobile clinics could be piloted which would benefitnot only older people but also others who have difficulty in keepingappointments.

• Training support should be provided to carers to help older people tomaintain their pattern of independent living as long as they wish to doso, to include an understanding of the competencies required of carers.

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• PSI Working Group on Older People to work with the PSI WorkingGroup on Carers to reinforce each others efforts to ensure that healthand social care systems are shaped around the needs of older peopleand their carers, and ultimately, that they are holistic.

• Work to be undertaken by the key agencies to provide acomprehensive package of support for people who want to remain intheir own homes.

Idea 2.6: Develop a more open debate about decisions around theend of life by older people

This is a difficult area for older people, families and health and care staff,but it is important that, when someone wants to, an open conversationabout decisions around the end of their life is facilitated.

Proposals:

• Health and care staff to be trained to ensure that older people’s desiresabout planning for their death and funeral arrangements, and decisionsabout their will, are discussed, should they so wish.

Objective 3: To increase the safety of older people and to ensure thatthey have access to the facilities and services that meet their needs andwishes

Analysis of available research has shown that much of the exclusionexperienced by older people is related to the lack of adequate housing,transport, rural services and safety.

Idea 3.1: Help to identify the needs of older people inTransportation Strategies and policy delivery in Northern Ireland

The Regional Transportation Strategy 2002 (RTS) indicated that theDepartment for Regional Development (DRD) would prepare anAccessible Transport Strategy for Northern Ireland by March 2005 which

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would, among other things, examine the scope for a more co-ordinatedapproach to the planning and provision of transport for people withdisabilities and older people. Changes as a result will include:

• improving the design of existing transport services or reduce oreliminate the barriers they contain;

• suggesting new services that are more user-friendly or appropriate; • making sure that the services provided work in an integrated way and

that people can access the transport information that is appropriate totheir needs.

This Strategy offers an opportunity to address the mobility needs of olderpeople in Northern Ireland.

The Regional Transportation Strategy for Northern Ireland 2002 (RTS) setsthe context for implementation plans on the Regional Transport Networkacross Belfast and the sub-region, i.e. main towns and rural areas.

This Report commends the preparation of an Accessible TransportStrategy for Northern Ireland. It acknowledges the work DRD inconjunction with Translink has done to make its services more accessiblein the provision of low floor buses, real time information and accessibilityat bus and train stations.

This Report also acknowledges that the DRD enhanced concessionaryfares scheme, which provides free travel for people aged 65 and over onall bus and rail services has removed an important financial barrier to theuse of public transport, and in turn has increased mobility and reducedthe social isolation experienced by many older people.

It is important that the Regional Transportation Strategy implementationplans address the distinctive needs of older people, and set out theimplications of older people’s mobility when drawing up all the differentmodal forms for road-based transportation, including walking, cycling,buses, taxis and railways.

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Proposals:

• PSI Working Group on Older People will give a commitment to workwith DRD in ensuring that consultation is open and inclusive, that olderpeople’s views are registered effectively; that advice and examples ofgood practice are offered; that the delivery of actions, especially wherethey combine community and locally based transport solutions,involves the participation of older people.

• The Regional Transport Strategy Implementation Plans should drawattention to:- the need for accessible walking strategies, e.g. appropriate

pavement and kerb design; and- for road planning to take account of the safety of older people,

especially given the health benefits of cycling and walking.

Idea 3.2: Need to maximise the potential of community, flexible andDemand Responsive Transport options, in meeting the needs ofolder people in the region

DRD has identified an indicative sum of £31.6m for the development ofthe Demand Responsive Transport initiative, which is an innovative servicedeveloped for older people, managed mostly by voluntary and communitygroups. The initiative will be assessed through strategically important pilotprojects, and includes the use of minibuses and Social Care Schemes,which have provided flexible alternatives for older people to get toservices, including shopping, entertainment and hospital, as well as anopportunity for mixing and socialising.

The results of the pilot schemes and normal government budgetaryprocesses and priorities will dictate the extent of any future roll-out ofDemand Responsive Transport.

The PSI Older People Working Group acknowledges the impact of theRural Transport Fund and indeed the Transport Programme for Peoplewith Disabilities, which support door-to-door services for affiliated groups,which it recognises are expensive services that should be used efficiently.

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There has also been advancement in the development of services for andby older people in the area of housing. This includes:

• bringing Supporting People assistance to nearly 9,000 older residents,and the funding of services in sheltered and very sheltered dwellings;

• the development of assistive technologies in Supported Housing forpeople with dementia;

• specific assistance to remote rural dwellers under the HousingExecutive’s Rural Housing Strategy Places for People; and

• the development of integrated approaches to community safety onhousing estates.

This emphasises the need for innovation in both bringing services to olderpeople and bringing older people to services.

Proposals:

• Extend methodology of developing services relating to access toeducation, culture and leisure that older people want, at times andplaces that suit them, and in an environment that they are comfortablewith.

• Ensure that older people are made aware of the opportunities fortraining in and free use of computers in public libraries.

• OFMDFM will work with statutory organisations to ensure that they setout more clearly how their objectives are to be achieved in the routineprovision of facilities and services, and that these are describedrobustly in Section 75 Equality Plans.

Idea 3.5: Improve safety and help reduce the fear that some olderpeople experience in Northern Ireland

Concerted action is needed at regional and local level to address crimeand fear of crime among older people. It is considered that localcommunity safety partnerships have a vital role to play in supporting olderpeople in their homes and streets in areas where they are most likely tofeel anxious.

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Proposal:

• OFMDFM will work with DRD to consider the impact of the pilotprojects on older people, and to highlight the effects of DemandResponsive Transport on addressing their isolation, especially in ruralareas.

• Ensure wider social benefits are taken into consideration in any formalevaluation of pilot projects involving older people who are socially orphysically isolated.

Idea 3.4: Ensure that older people have access to education,cultural and leisure facilities that can help them live fulfilling lives

Access to libraries, museums, arts venues, sporting and leisure facilitiesare vital to the quality of older people’s lives. It is important to encouragea co-ordinated approach to the development of their use, whilst takinginto account the specific obstacles that older people experience.

Library services are a good example of the way in which progress hasbeen made in delivering services for older people. Research carried out bythe Department for Culture, Arts and Leisure (DCAL) into the use oflibraries in 2002 showed that seven libraries in Belfast had an average of32% of users aged 65 and over. Moreover, the Gateways Project oncommunity access to lifelong learning showed high participation andcompletion rates among older people.

Museums in Northern Ireland through The National Museums andGalleries of Northern Ireland (MAGNI) provide a range of services targetedspecifically at older people. These include:

• intergenerational work, bringing older and young people into directcontact;

• reminiscence work with people with varying degrees of memory loss;• talks and special leisure activities, including art based workshops;• outreach activities, for example work with a local Fold;• lectures to Probus groups.

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A Community Safety Strategy for Older People is being prepared by theNorthern Ireland Office for public consultation.

Proposals:

• Prioritise concerns and fears of older people, and ensure that the fearthat many older people experience in their home and community isaddressed.

• Involve Community Safety Partnerships in describing the actions to betaken to address the needs and rights of older people, to supportthem, and to make them feel more secure.

• Organise concerted and co-ordinated campaigns involving olderpeople, Government, the voluntary sector and community groups, toimprove crime awareness among older residents.

• provide education about crime prevention and avoidance behaviour.

Idea 3.6: Help make the environments of neighbourhoods saferplaces for older people

Older people in isolated rural areas feel especially vulnerable, and it isimportant that community networks are used to support those living inremote locations.

The Housing Executive and Housing Associations have worked hard topromote safe areas and to design housing estates and new buildingschemes in ways that reduce the chances of crime and anti-socialbehaviour. In some areas, initiatives such as closing off communal alleyshave had a significant impact on reducing crime and vandalism. The NIHEalso provide a neighbourhood warden service targeted on the mostdeprived estates with particular responsibility for dealing with anti-socialbehaviour, and providing reassurance with regard to the fear of crime forelderly residents.

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Proposals:

• NIHE initiatives should dovetail into the Strategy on NeighbourhoodRenewal in order to develop comprehensive approaches to the needsof older people living in high-risk areas.

• The Strategy on Neighbourhood Renewal should be implemented inpartnership with key Government Departments, the NI Police Service,the Rural Development Council, and Rural Community Network, todevelop a programme dealing with the safety of older people inrural areas.

• The Rural Support Networks should play a vital role in co-ordinatingthe delivery of the Neighbourhood Renewal Strategy at a morelocal level, in conjunction with Community Safety Partnershipswhere relevant.

Idea 3.7: Develop positive links between schools and older peoplein order to improve inter-generational understanding

Inter-generational Programmes (IPs) are gaining increasing recognition forthe contribution they can make to building vibrant, inclusive and safercommunities. They are identified as such in the United Nations GlobalStrategy on Ageing, and are being developed and supported byorganisations at national and international level. Inter-generationalProgrammes fit many agendas, including those of education (including,but not exclusive to, citizenship education), community safety and theinvestment for health initiative. They also build social capital.

A Northern Ireland Inter-generational Steering Group has been establishedled in partnership between Age Concern Northern Ireland and theNorthern Ireland Youth Council. This has evolved out of the projects andgood practice developed over a number of years, and has gainedrecognition in Britain, Ireland and the International Consortium for thequality and pioneering nature of the work undertaken. The SteeringGroup’s aims include:

• encouraging the development of Inter-generational Programmes inNorthern Ireland;

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Older people have a diverse range of expertise and experience that notonly can be utilised fully in addressing their own needs but also the needsof others. Equally, older people should be supported in developing andenhancing their skills to assist in the participation in civic life as fully asthey wish.

One of the potential barriers to the participation of older people in civiclife is discrimination. It is considered that older people are likely to facediscrimination in two ways:

• where older people are treated differently than other people seekingthe same service or facility; and

• where older people are treated the same as other people when theirdistinctive priorities should be taken into account.

The Office of the First Minister and Deputy First Minister (OFMDFM) hasrecently completed a consultation on implementing the age strand of theEuropean Employment Framework Directive in Northern Ireland. A copyof the consultation document is available for information on theDepartment’s website http://www.ofmdfmni.gov.uk/equality. Thisage-specific employment and training legislation will subsequentlybecome part of a Single Equality Bill in Northern Ireland, currently beingdeveloped, also by the Office of the First Minister and Deputy FirstMinister.

The legislative protection for older people will be strengthened by the ageemployment and training regulations that implement the EuropeanEmployment Framework Directive, as well as by the planned SingleEquality Bill. Age Concern recently conducted research into the impact ofSection 75 on public authorities10. The survey showed that agencies hadgood links with the age sector, valued their input into equality planningand had changed policies and procedures as a result.

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• spreading good practice; and• maintaining standards of excellence.

Proposals:

• Include Inter-generational Programmes in the personal and socialeducation section of the curriculum for Education for Citizenship toencourage young people to understand the personal social andeconomic aspects of ageing.

• OFMDFM will work with Government Departments to examine astructure whereby older people can support schools in managementadministration and participation in the classroom.

Objective 4: To promote equality of opportunity for older people andtheir full participation in civic life, and challenge ageism wherever it isfound

In carrying out its functions relating to Northern Ireland a public authorityshall have due regard to the need to promote equality of opportunity-

1. between persons of different religious beliefs, political opinion, racialgroup, age, marital status or sexual orientation;

2. between men and women generally;3. between persons with a disability and persons without; and4. between persons with dependants and persons without.

Social Capital is a concept which maintains that the ‘health’ of acommunity can be measured by the quantity and quality of a sense ofbelonging and safety individuals feel in the community, the links thecommunity has with other communities, and the links the community haswith Government and statutory agencies, in other words the skills andinfrastructure that aid in social progress.

The Social capital concept has been recognised as an effectivecontribution towards the development of local areas and neighbourhoods,through its participation of local communities, activities and organisations,for which older people have a valuable contribution to make should theyso wish.

10 Age Concern (2003) Report on the Analysis of Questionnaires on the Impact of Section 75 on PublicAuthorities and Older People, Belfast, Age Concern.

Idea 4.1: Ensure that the Single Equality Bill protects older peoplefrom discrimination in the provision of goods, facilities and services

OFMDFM is currently consulting on the Single Equality Bill, which aims toharmonise existing anti-discrimination legislation as far as practicabletaking account of emerging equality law elsewhere.

Proposal:

• OFMDFM will consult on the issue of older people being protectedfrom discrimination in the area of goods, facilities and services. This willfollow on from age legislation, which will provide protection in the fieldof employment, including older people.

Idea 4.2: Make greater efforts to understand the problems of olderpeople facing multiple forms of exclusion, and take action toaddress these on a collective basis

Older people can face a number of forms of discrimination, which can beaccentuated by other aspects of their identities and lifestyles. It isimportant that more is known about the way in which these issues worktogether to further exclude and marginalise older people.

Proposal:

• OFMDFM to develop further work with the Equality Commission for NIto undertake research into multiple identities and exclusion.

Idea 4.3: Ensure that implementation of Section 75 Statutory Dutypromotes equality of opportunity for older people in NorthernIreland

Equality Impact Assessments (EQIAs) are vital instruments for takingaccount of issues affecting older people in key decisions, programmesand major policies.

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We intend carrying out work to develop and disseminate best practice inensuring they do this as well as possible.

In addition to taking account of the needs of older people as a group it isimportant that EQIA recognise the different needs of different groups ofolder people. Such as men and women or those with a disability or thosefrom ethnic minority or other socially excluded groups. We proposebringing forward work to consider how we can do this most effectively.

Proposals:

• Government, the age sector and the Equality Commission to worktogether to develop guidance for Departments and agencies on how toaddress, involve and mainstream older people’s concerns within theSection 75 Statutory Duty. The guidance could also encourageDepartments and agencies to think more creatively about promotinggood relations between older people, other key equality groups andmainstream society.

• Work should be done to develop best practice in the way in whichthey address older people’s needs. The age sector to work with publicsector bodies, including the Equality Commission in preparation ofmethodological guidance for Departments and agencies, aimed atmaking account for and evaluation of any discriminatory effects ofpolicies on older people, and the mitigating options open todecision makers.

• We will also develop work to consider how best to take into accountthe needs of different groups of older people within the EQIAmethodology.

This will tie in with the holistic approach of this strategy.

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Idea 4.4: Support the implementation of a strategy to supportcommunity relations among older people

Research by Help the Aged on older people and community relationshighlighted the distinctive problems that have been faced by older peopleduring the Troubles, as well as in the emergence from conflict11. Theresearch shows that many people have grown old throughout the conflictand that many exhibit denial, bitterness, loss of religious faith and a long-term inability to move on with their lives. The research also shows thatolder people have more positive attitudes to community relations and thepolitical future of Northern Ireland than the rest of the population.

The Help the Aged report highlighted the need:

• for training within District Councils, the Community Relations Counciland central Government on older people and community relations, andthe development of specific programmes to support the Age sector inNorthern Ireland;

• to recognise and support the capacity of local church networks in theprovision of services, pastoral care and for meeting people;

• for health and social services providers to understand the long-termeffects of trauma and bereavement on older people as a result of theTroubles;

• for specific community relations programmes, including single identityprojects and cross-community initiatives, supported by the CommunityRelations Council and other funders.

Proposal:

• OFMDFM will ensure that recommendations contained in the Help theAged (2000) Too Easy to Ignore?: Older People and communityrelations in NI are implemented in full, and urge all the agenciesidentified in the report to work together to support older people.

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Idea 4.5: Ensure that Government policy for the development of thevoluntary and community sector identifies older people as astrategic priority

Consideration should be given to the infrastructure requirements of thevoluntary and community sector in order to support their current andprojected work with older people. The needs and issues affecting olderpeople should be given appropriate consideration in the review andrevision of Action Plans.

Proposals:

• Departments to assess and make recommendations as to thecontribution they can make to the development of the capacity of thevoluntary and community sectors to meet the needs of older people.

Idea 4.6: It is important that the sector supporting the needs ofolder people is sustained in the long-term

The Task Force on Resourcing the Voluntary and Community Sector islooking at the longer-term needs of the sector, especially with the potentialfor depleting or restructuring of EU Structural Funds after 2006. The flowof Structural Funds coming into the voluntary sector has not benefitedolder people in the same way as other important interests in NorthernIreland. This is an important issue facing the sector, Government and olderpeople, and it is crucial that linkages among older people’s groups, and thewider voluntary and community sector are maintained and developed.

Proposal:

• The Task Force on Resourcing the Voluntary and Community Sector toconsider the distinctive needs of the sector dealing with older peoplein a way that can help move towards long-term sustainability, and theviability of programmes that need time to impact on the lives ofvulnerable people, e.g. mutual visits and exchanges between olderpeople’s groups and other groups, and their involvement in localumbrella groups.

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11 Help the Aged (2000) Too Easy to Ignore?: Older People and Community Relations in NorthernIreland, Belfast, Help the Aged.

Idea 4.7: Promote volunteering and community participation amongolder people

Older people can face specific obstacles to volunteering including the costof and access to transport and it is important that these are recognised inthe design and delivery of volunteering initiatives.

The Compact between Government and the Voluntary and CommunitySector defines volunteering as “the commitment of time and energy forthe benefit of society and the community, the environment, or individualsoutside one’s immediate family. It is undertaken freely and by choicewithout concern for financial gain”.

The DSD Community Volunteering Scheme specifically targets olderpeople as an under-represented group in the volunteering population, andfunds a number of projects, which aim to recruit and support oldervolunteers. In addition, DSD provides funding under the Active CommunityInitiative to the Voluntary Service Bureau “Retired and Senior VolunteerProgramme.” This project aims to promote active age for those over 50by utilising the knowledge and skills gained during the volunteer's lifetimeof work.

New governance arrangements in the form of Local Strategic Partnerships,Neighbourhood Partnerships and Tenant Consumer Panels are alsoimportant bodies where older people bring a huge wealth of experience,knowledge and learning. It is important that the capacity of older peopleon these groups are given distinctive support.

Proposals:

• Government and the voluntary sector to work in partnership to developthe capacities of older people, their participation in volunteering andtheir distinctive needs as volunteers.

• OFMDFM will work to ensure that the efforts that are being invested involunteering by older people are facilitated and co-ordinated.

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Idea 4.8: Develop the capacities of older people in the delivery oflocally based regeneration programmes

As mentioned earlier, DSD’s Neighbourhood Renewal Strategy, Peopleand Place, represents an important framework for tackling the integratedneeds of older people living in areas of urban disadvantage. The approachalso offers an important opportunity to bring older people into decision-making processes and in the delivery of actions in places where theyoften feel marginalized and frightened. For example, the NeighbourhoodWarden Scheme operated by the Housing Executive has had a significantimpact on the reduction of anti-social behaviour, vandalism and theremoval of sectarian graffiti. Here, many experienced and respected olderpeople are making a profound contribution to their community.

Proposal:

• Interventions such as the involvement of older people in the HousingExecutive’s Neighbourhood Warden Scheme to be further encouragedand developed in the delivery of both urban and rural regenerationprogrammes.

Idea 4.9: Challenge stereotypes and develop positive images ofolder people as valued and valuable members of local society

It is vital that the contribution that older people make to local life ispresented in more positive and creative ways, including the role they playin local history research, volunteering and in community development.

The World Assembly on Ageing held in Madrid recently adopted anInternational Plan of Action that called on the international community tochallenge society’s perception of ageing.

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Proposal:

• OFMDFM in conjunction with leading agencies in the voluntary andcommunity sector to commission a targeted publicity strategy that will:- challenge stereotypes of older people in the local media;- modify the language and images used to represent older people;- raise awareness of the contribution older people make in a range of

spheres of civic life; and- highlight the benefits of ageing.

We have set out a long list of ideas here and suggested somespecific issues for development. Do you think that these arethe correct actions and are there other issues that you wouldlike to see included? Should any of the proposals be changedor even left out of the Strategy? In what way would you like tosee the ideas prioritised? Are there specific examples of bestpractice or projects that could help us to develop meaningfulprogrammes in these areas?

Objective 5: To ensure that Departments, Agencies and the Age andother voluntary sectors work in a coordinated way to improve servicesfor older people

It is important that raising the profile of issues for older people as amatter of priority results in the delivery of improved services andopportunity. The approach must be a co-ordinated one with Governmentworking in partnership with interested bodies and service providers in thevoluntary, community and private sectors.

Idea 5.1: Identify a champion for older people placed in a seniorposition within Government

It is considered that a high level committed figure within Governmentneeds to be identified to provide prominence to issues for older people,and to ensure that priorities are to be given prominence and integratedeffectively.

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This consultation seeks views on how this can be taken forward inNorthern Ireland.

Proposal:

• Identify a Champion, possibly at Ministerial level, to:- Advocate progressive joined-up policy across Government;- Lead the implementation of the PSI Strategy within Government;- Develop a wide ranging and high profile marketing and awareness

campaign promoting older people’s rights and opportunities;- Ensure that older people’s affairs are addressed in key strategies

such as the Programme for Government;- Help to articulate older people’s priorities in setting out policy

objectives including Public Service Agreements (PSAs) and ServiceDelivery Agreements (SDAs);

- Help to facilitate integrated actions required to tackle the exclusionof older people;

- Monitor progress and identify critical issues, obstacles and solutionsrelevant to the delivery of the Strategy.

Idea 5.2: Ensure that this Strategy is implemented effectively andreviewed

It has been stressed in this draft Strategy that the needs of older peopleare integrated and multi-layered. It is important that key Departments,business and the age sector work in mutually reinforcing ways, and thattheir policies and programmes are harmonised effectively.

Proposals:

• The PSI Working Group on Older People should redefine its role as anImplementation Group that would help to monitor the delivery of anAction Plan to take forward the PSI Strategy.

• The PSI Working Group on Older People would also monitor progresstowards achieving its objectives and targets and report progressannually to relevant Ministers.

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Idea 5.3: Put in place a system for monitoring and evaluating theprogress of the Strategy against the objectives

It is important that progress in achieving the objectives set out for theStrategy is assessed. It is also important that these are consistent withother PSI policy priorities, especially where it can measure progresstowards financial, social and economic inclusion.

There is now in place a range of data on the lives and experiences ofolder people, including the House Condition Survey, Northern IrelandHousehold Panel, Continuous Household Survey and the Life andTimes Survey.

The recently developed Geographical Information Strategy for NorthernIreland (Mosaic), which aims to improve the delivery of effective services,management of resources and the development of informed, evidence-based policy through the exploitation of geographical information, couldalso be an important monitoring tool not only in the development of thisolder people’s strategy but also in monitoring its impact.

Proposals:

• OFMDFM will identify monitoring indicators that are specifically linkedto the Action Plan for older people, which in turn would establishtargets for the actions to be taken forward from this Strategy, andunderpinned by the work of the proposed PSI Older PeopleImplementation Group (see idea 5.2).

• The proposed PSI Older People’s Implementation Group will workclosely with DCAL on the implementation of the GeographicalInformation Strategy for Northern Ireland (Mosaic) as an effective toolto assist in the development and monitoring of the Ageing in anInclusive Society Strategy.

• Northern Ireland Statistics and Research Agency (NISRA) to takeforward the monitoring exercise;

• A comprehensive mid-term evaluation (between 2 to 3 years) to be carriedout, looking at inputs, activities, outputs and outcomes from the Strategy.

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Idea 5.4: Collate and disseminate best practice on policy,programme and projects to support older people in NorthernIreland

It is important to recognise that whilst innovative programmes have beendeveloped in the past it is vital that lessons continue to be learnt from theavailable evidence, and that practices are shared and enhanced as muchas possible.

Proposals:

• Collate research and evidence of projects, policy interventions andprogrammes, some of which have already been identified in this report,designed to deal with older people’s exclusion, which might relate to:- new governance arrangements involving older people;- volunteering schemes;- the experiences of the Neighbourhood Wardens, older people in the

workplace;- joining up and integrating actions;- initiatives in the private sector; and- lessons from elsewhere, including outside the United Kingdom.

• Research and evidence material to be made available in accessibleformats.

• Research and evidence material to be made available as a resource fordevelopment, training and education.

• OFMDFM to commission a consortium of interests to establish andservice the programme of best practice projects and policies thatsupport older people (possibly involving voluntary sector agencies andthe Universities) and set out how it can be maintained and developedin the longer-term.

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Idea 5.5: Develop and implement a research strategy to helpimprove legislation, policies and programmes for older people

Many of the proposals set out here have pointed to the need for furtherresearch to help understand the problems faced by older people, theirpriorities and how and where they use services.

Proposals:

• OFMDFM to develop a research programme on older people that willhelp to support the delivery of this strategy.

• This would begin with the publication of a draft strategy forconsultation with the interested organisations and people.

How do you feel about our proposed approach to Strategyimplementation and how do you think we might integrate all theinterests in the delivery of the proposed actions? Have you anyspecific views on how we should monitor and evaluate the Strategyover time?

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Making a response to the consultation

This document sets out a range of ideas designed to improve the lives ofolder people. Many relate to the humanity and basic decency accorded toolder people, whilst others involve more specific actions or policyproposals. We want to develop through this Promoting Social Inclusionprocess an agenda that will address the inter-related needs of olderpeople and identify their contribution to the civic, social and economic lifeof Northern Ireland.

Throughout this document we have posed a number of consultationquestions and have summarised these below. We suggest that thesemight help to frame a consistent approach to the consultation exercisebut you should not feel constrained by these particular issues. Wewelcome any relevant and informed discussion about how to promote thesocial inclusion of older people in Northern Ireland and all responses arevaluable in this debate. The questions are:

• Do you feel that we have analysed the needs and priorities ofolder people correctly?

• Are there issues that you think we should include in ourassessment of need when establishing priorities?

• Are the principles, vision and strategic objectives appropriateand do they reflect your priorities for the development of aStrategy for older people;

• We have set out a long list of activities under Objectives 1 toObjective 4. Do you think that these are the correct actions andare there other issues that you would like to see included?

• In what way would you like to see the ideas prioritised? • Are there specific examples of best practice or projects that

could help us to develop meaningful programmes in these areas?• Should any of the proposals be changed or even left out of the

Strategy?• How do you feel about our proposed approach to Strategy

implementation and how do you think we might integrate all theinterests in the delivery of the proposed actions?

• Have you any specific views on how we should monitor andevaluate the Strategy over time?

5

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Please also see Equality issues raised in Annex 1.

You should make your response in writing by the 19th of November2004 to:

Andrew AdamsOffice of the First and Deputy First MinisterRoom E.3.21Castle BuildingsStormontBelfastBT4 3SR

Or e-mail to [email protected]

This consultation paper will be available from all post offices and publiclibraries in Northern Ireland. It is being sent to:

• Members of Parliament and MEPs;• Members of the Legislative Assembly;• District Councillors and community representatives within Northern

Ireland;• Voluntary and community sector organisations concerned with older

people and Section 75 equality issues;• Statutory bodies within both Northern Ireland and Great Britain;• Irish Association of Older People;• Age Action Ireland;• National Council on Ageing and Older People (Ireland);• A wide range of voluntary and community organisations.

If you require additional copies or alternative formats of the consultationpaper, please contact the above address or telephone 028 9052 3437.The paper is also available on our website at:http://www.ageinginni.gov.uk

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All comments will be treated as public unless you state that you wish yourviews to be treated in confidence. All comments will be considered whendeveloping the Strategy and a summary of the responses will be placedon our website.

The consultation process will last until the 19th November 2004 and wepropose to publish the report of the consultation by January 2005. Wewill take a further three months to finalise our report, which we willpublish by April 2005. After that we will produce an Action Plan, whichwill set out how we will implement the overarching strategy including:

• The description of actions designed to achieve the objectives;• The identification of bodies involved in programme delivery;• The resource implications, if any, of the key actions;• Targets for the objective areas that will be time bounded;• Monitoring and evaluation methods linked to performance targets.

We also propose to launch a publicity drive to ensure that the Strategy isunderstood by older people, Government Departments, businesses andthe Community and Voluntary sector. This will help to underpin our effortsto implement the Strategy and deliver change as effectively as possible.

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Annex 1 Equality issues

Background

1. Section 75 (1) of the Northern Ireland Act 1998, which came into force on1st January 2000, “A public authority shall have due regard to the need topromote equality of opportunity –

(a) between persons of different religious belief, political opinion, racialgroup, age, marital status or sexual orientation;

(b) between men and women generally;(c) between persons with a disability and persons without; and(d) between persons with dependants and persons without.

In addition Section 75 (2) states that; ‘Without prejudice to its obligationsabove, a public authority shall, in carrying out its functions relating toNorthern Ireland, have regard to the desirability of promoting goodrelations between persons of different religious belief, political opinion orracial group.’

2. In line with its legal obligations and the specific commitments in itsapproved Equality Scheme, the Office of the First Minister and DeputyFirst Minister is fully committed to adhering to the provisions of Section75 of the Northern Ireland Act 1998 when reviewing and developingpolicy.

The Ageing in an Inclusive Society evaluation

3. The Promoting Social Inclusion (PSI) group on Older People was set up in2002 in response to a commitment given in the first Programme forGovernment. ‘Ageing in an Inclusive Society’ is a process set in place byGovernment to promote and support the inclusion of Older People inNorthern Ireland.

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Assessment of impact

4. Ageing is a multi-dimensional issue, which cuts across several Section 75groups.

5. Research has shown that as the population gets older there are a higherproportion of:

a. Women;b. Protestants;c. Single persons;d. Persons without dependants; ande. Persons with disabilities.

6. The objective of this evaluation is to increase the positive impact on olderpeople without adding any negative impacts for them or others.

7. Equality and New TSN analysis are closely linked, and wherever screeningindicates that it is necessary, programmes and policies falling out of thisstrategy will be subject to full equality impact assessment. It will ensurethat our current view of the likely equality impact of the strategy is correct.Only equality impact assessment of specific policy measures willaccurately identify positive and negative impacts.

Questions on equality issues

8. We are seeking views on the way in which equality issues interface withissues discussed in this document and would be grateful for yourcomments on the following:

Is there any other data or information we should take into account whenthinking about Section 75 (1) equality issues in relation to the strategy?

Could the proposals, in your view, impact on any groups withinSection 75 of the Northern Ireland Act in a way we have not identified?If so, how?

Taking account of existing legislation, are there any alternative approachesto ‘Ageing in an Inclusive Society’ in a more equality-friendly way? If so,what are they?

Do you have any other comments on the equality issues raised in thischapter?

Decisions and publication

9. Taking account of this public consultation, the consideration of theseequality issues and any more raised in consultation will be taken intoaccount prior to final decisions being made by Ministers. This will be fullyreflected in the final strategy.

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Annex II Terms of Reference of the PSI Working Group on older people

Scope and objectives

The Programme for Government commits us to opening new channels ofcommunication with organisations that represent older people to identifythe developing needs of older people, to consider how our services canbest be provided in appropriate and accessible ways. This work will betaken forward in the context of the Promoting Social Inclusion element ofNew TSN.

The Working Group will consider factors, which cause older people to beat risk of social exclusion and develop a co-ordinated Strategy throughwhich relevant agencies will work together to tackle them.

OFMDFM will present Ministers with a draft policy and Strategydocument for public consultation, setting out clearly definedrecommendations as to what preventative and other measures arerequired, by whom, and within what timescales, and other mechanisms tobe put in place to evaluate effectiveness and ensure progress.

This policy and Strategy document will be subject to Equality ImpactAssessment.

Timescales

Work will begin during 2002. A draft Policy and Strategy document will bedelivered within one year of the establishment of the Working Group. Afinal report will be provided to Ministers with 2 years of the initiation ofthe work.

Membership of Working Group

The Working Group will be lead by a Senior Official in OFMDFM. TheWorking Group will comprise representatives from Departments, thewider Public Sector, Voluntary Sector and people directly concerned withthe issues affecting older people, or their representatives.

Methodology

The Working Group will:

• Use existing research and other evidence and the advice of experts(including representatives of those most directly affected by theproblem) to analyse the issues and develop an understanding of theissues affecting older people, and their causes.

• Consider Departments’ roles and responsibilities in relation to olderpeople, including the effectiveness of any existing policies, programmesand structures with a view to identifying elements which work well andshould be developed and areas where things could be done differently.

• Identify and examine options for the way forward (this may includeexamining models of good practice which exist elsewhere), includingpreventative measures.

• Make recommendations to Ministers as to what requires to be done,by whom and within what timescale, and the measures includingperformance measures to be put in place to ensure progress andmonitor effectiveness.

Monitoring and reporting

Detailed Terms of Reference, Action Plans and Performance Targets willbe developed by the Working Group and agreed with the Equality andSocial Need Steering Group. The Working Group will report to the ESNSGon progress against agreed targets on a regular basis and will beresponsible for preparing a final report to Ministers. Specific targets will beincluded in our TSN Action Plans and progress will be reported on aregular basis.

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Annex III Membership of the PSI Working Group on older people

Office of the First and Deputy First Minister (OFMDFM) – Chair;Anti-discrimination legislation Division; and Secretariat supportDepartment of Agriculture and Rural Development (DARD)Department for Culture Arts and Leisure (DCAL)Department of Education (DE)Department for Employment and Learning (DEL)Department of Enterprise Trade and Investment (DETI)Department of Finance and Personnel (DFP)Department of Health, Social Services and Public Safety (DHSSPS)Department for Regional Development (DRD)Department for Social Development (DSD)Northern Ireland Office (NIO)Northern Ireland Housing Executive (NIHE)Northern Ireland Statistics and Research Agency (NISRA)Equality Commission for Northern Ireland (ECNI)Northern Ireland Human Rights Commission (NIHRC)Northern Ireland Congress/Irish Congress of Trade Unions (NIC/ICTU)Age Concern (NI)Age Sector Reference GroupConfederation of British Industry (CBI)Law Centre (NI)Help the Aged Rural Community NetworkNorthern Ireland Council on Voluntary Action (NICVA)

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Ageing in an Inclusive Society

Office of the First Minister and Deputy First Minister

Room E3.21

Castle Buildings

Stormont

Belfast

BT4 3SR

www.ageinginni.gov.uk

E-mail:[email protected]

Tel: (028) 9052 3437

ageing in an inclusive society - university of bristol · 2012-01-09 · research, strategy and...

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